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THE 

CITY  GOVERNMENT 

OF 

LOS  ANGELES,  CALIFORNIA ' 


Organization  Charts,  /f^y. 


PREPARED  BY  THE 

EFFICIENCY  DEPARTMENT  OF  LOS  ANGELES 

JULY  1,  1914 


Efficiency  Department  of  Los  Angeles 

320-323  Exchange  Building. 


ORDINANCE 

CREATING  THE  DEPARTMENT 

Approved  September  16,  1913. 

"A  commission  is  hereby  created  to  be  known  and  desig- 
nated as  the  Efflciency  Commission.  Said  Commission  shall 
consist  of  the  City  Auditor,  the  Vice-President  of  the  Civil 
Service  Commission  and  the  Chairman  of  the  Efficiency  Com- 
mittee of  the  City  Council.  Ali  of  said  commissioners  shall 
serve  without  compensation. 

"Said  Commission  shall  have  power  to  investigate  the  ad- 
ministration of  the  various  departments  of  the  City  for  the 
purpose  of  determining  the  duties  of  each  position  therein,  to 
fix  standards  of  efTiciency,  to  establish  a  system  of  Individual 
efflciency  records,  and  to  recommend  to  the  City  Council  and 
to  the  respective  officers,  hoards  and  commissions  of  the  City 
measures  for  increasing  individual,  group  and  departmental 
efficiency,  and  providing  for  simplicity  of  operation  and  uni- 
formity of  compensation  throughout  the  service." 


EFFICIENCY  COMMISSION 


J.   S.   CONWELL,   President 
MRS.  D.  C.  McCAN 
JOHN  S.  MEYERS 


JESSE    D.    BURKS,    Director. 


Los  Angeles  City  Government 


The  charts  included  in  this  pamphlet  have  been  prepared  to  show  graphically  the  distribution 
of  functions  and  lines  of  authority  in  the  municipal  organization  as  a  wliole,  and  in  the  several 
departments  individually,  as  of  May  1st,  1914. 

The  charts  are  purely  descriptive  in  character.  No  attempt  lias  been  made  to  present  syste- 
matic criticism  or  to  formulate  constructive  plans  for  overcoming  defects  in  the  organization.  The  aim 
has  been,  rather,  to  furni.sh  a  starting  point  for  further  study  of  the  municipality.  The  organization 
charts  will  serve  their  most  useful  purpose  if  they  focus  the  attention  of  officials  and  citizens  on 
concrete  problems  of  organization  and  thus  enlist  the  active  co-operation  of  a  large  number  of  indi- 
viduals in  the  working  out  of  a  systematic  plan  of  general  and  departmental  readjustment. 

As  a  basis  of  comparison,  a  chart  is  included  showing  the  typical  organization  of  large  pri- 
vate corporations.  This  illustrates  graphically  the  complete  centralization  of  administrative  author- 
ity and  the  clear  definition,  distribution,  and  correlation  of  powers  and  functions  which  have  been 
followed  by  most  large  modern  business  enterprises. 

Whatever  may  be  the  political  and  economic  advantages  or  disadvantages  of  this  form  of 
corporate  organization,  it  is  generally  conceded  to  be,  from  an  administrative  viewpoint,  a  most 
effective  means  of  aceomplislnng  desired  results.  As  a  form  of  organization,  therefore,  it  is  well 
worth  the  careful  consideration  of  students  of  municipal  management.  Briefly  summarized,  this 
organization  conforms  to  seven  well  defined  principles  of  management,  viz: 

1.  The  number  of  officers  elected  by  the  stockholders  is  very  small;  usually  only  the  members  of  the  board 
of  directors. 

2.  Each  important  group  of  stockholders  is  represented,  according  to  the  size  of  its  interest,  by  membership  in 
the  board  of  directors. 

3.  The  board  of  directors  confines  its  activities  to  general  regulation,  leaving  all  details  of  management 
to  its  expert  administrative  officers. 

4.  Administrative  authority  and  responsibility  are  definitely  fixed:  ultimately  on  a  single  head  whose  func- 
tion it  is  to  carry  into  effect  the  policies  determined  upon  by  the  board  of  directors.  This  officer  is  account- 
able to  the  board  tor  economy  and  efficiency  throughout  the  organization. 

5.  Functions  are  logically  classified  and  grouped;  a  single  officer  being  made  responsible  to  the  chief 
administrative  officer  (president)  for  the  direction  of  each  function. 

6.  Men  of  special  fitness  are  chosen  to  perform  each  specific  kind  of  service;  employees  being  systemat- 
ically trained  in  tlie  service  and  promoted  to  positions  of  progressively  higher  responsibility. 

7.  No  man  is  permitted  to  do  work  that  can  be  as  well  done  by  less  expert  and  less  highly  paid  employees. 

In  contrast  with  this  type  of  organization,  the  municipal  organization,  as  shown  by  the  gen- 
eral chart,  exhibits  the  following  chief  characteristics: 

1.  The  number  of  elective  oflficers  Is  twenty-tour,  which  experience  has  show^n  is  larger  than  citizen-stock- 
holders can  or  will  intelligently  elect. 

2.  Important  groups  of  citizen-stockholders  are  practically  disfranchised  by  having  no  representation  in 
the  council-board-of-directors.  Failure,  by  even  a  narrow  margin,  to  obtain  a  plurality  of  votes  is  sufficient  to  deprive 
a  minority  group  of  citizens  of  any  representation. 

3.  The  City  Council  not  only  determines  matters  of  general  policy,  but  is  practically  responsible  for  many 
matters  of  administrative  detail,  such  as  the  appointment  of  administrative  officers  and  the  approval  of  purchase 
orders. 

4.  Administrative  authority  and  responsibility  are  widely  dissipated  and  scattered  as  between  the  mayor, 
the  council,  twenty  commissions,  and  twenty  department  heads  not  accountable  to  commissions.     Of  72  positions 


on  the  boards  and  commissions,  the  present  mayor  has  made  appointments  to  only  22;  the  others  being  either 
appointees  of  the  prectnlinK  mayor  or  ex-oflicio  incunibouts.  The  mayor's  appointments  are  subject  generally  but 
not  uniformly  to  confirmation  by  the  council.  Four  of  the  20  department  heads  not  subject  to  commission  control 
are  appointed  by  the  council,  and  four  by  the  mayor  without  confirmation  by  the  council. 

5.  There  is  overlapping,  illogical  classification  of  municipal  functions.  The  function  of  the  commissions  Is 
partly  that  of  administration  and  partly  that  of  directing  the  policies  of  administrative  ofhcers  subordinate  to 
them.  Even  a  casual  examination  of  the  organization  chart  shows  an  oil  inspector,  sealer  of  weights  and  meas- 
ures, boiler  inspector,  and  other  ollices  independently  organized  without  relation  to  closely  allied  service  in  the 
general  departments.  In  the  detail  arrangement  of  functions  within  departments,  similar  discrepancies  are  nu- 
merous. 

6.  Special  fitness  is  not  imiformly  tlie  basis  for  the  assignment  of  duties,  and  cannot  be  under  a  system  of 
disintegrated  authority.  Moreover,  the  constant  tendency  to  change  of  personnel  in  the  positions  of  higher  adminis- 
trative authority  makes  it  generally  impossible  for  the  city  to  have  the  service  of  well  trained  officers  in  these 
positions. 

7.  Highly  paid  otilcials  are  performing  duties  of  a  routine  character  that  might  be  better  performed  by 
clerical  or  other  subordinate  employees  at  lower  salary  cost.  In  some  cases  such  distribution  of  duties  is  pre- 
scribed by  charter;  In  others  it  is  the  result  of  inherited  defects  which  have  come  down  from  the  past. 

Special  problem.s  of  organization  will  ho  siitrjjcstfd  by  a  study  of  the  cliarts  of  tlic  several 
dejiartnicnts.  Such  questions  as  the  following  will  naturally  he  raised  in  the  study  of  (lr|iartiniiital 
orfranization : 

1.  Is  the  program  of  public  service  for  -which  the  department  is  responsible  adequately  pro- 
vided for  in  its  organization? 

2.  Are  the  activities  of  the  department  grouped  in  a  logical  and  eflfective  way? 

3.  Are  the  functions  performed  by  each  division  clearly  defined  and  properly  related ;  or  are 
there  overlapping  functions  and   conflicting  responsibilities? 

4.  Arc  the  duties  and  lines  of  authority  for  each  position  standardized,  defined,  and  reduced 
to  writing? 

5.  Have  employees  been  assigned  duties  which  are  in  accord  with  their  special  qualifications? 
fi.     Do  the  titles  of  positions  agree  with   actual  duties? 

7.  Do  salaries  conform  to  responsibilities,   qualifications,  titles,  and  lines  of  authority? 

8.  Is  the  routine  and  supervisory  work  of  the  (lci)artiiicnt  planned  on  a  "functional"  basis 
(one  employee  res|>onsible  for  all  purchasing,  another  for  disei]iline,  etc.)  ;  or  does  each  supervisor 
have  entire  responsibility  for  all  matters  affecting  a  given   group  of  employees? 

Tn  co-operation  with  other  city  departments,  the  Eflfieieney  Department  plans  to  utilize  those 
charts  as  a  l)asis  for  detail  constructive  studies  of  organization  and  administrative  method;  tin;  pur- 
pose being  to  lay  the  foundation  for  a  consistent  and  tlioroughgoing  application  of  business  methods 
in  the  public  business. 

EFFICIENCY  COMMISSION 
Los  Angeles,  California,  July  1,  1914.  Jesse  D.  Burks,  Director 


lyOS  ANGELES  CITY  GOVEHNMENT 


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CENTRAL 


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STATION 


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university! 

STATION   1 


CAPTAIN 
I  -2400 


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i;-l50C 


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3-  • 


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7-  » 


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BUfiEAU  or  STREET   MAINTENANCE  AND  INSPECTION 


University  ol  CalUomla 
SOUTHERN  REGIONAL  LIBRARY  FACILITY^ 
4ns  Hllaard  Avenue,  Los  Angeles,  CA  90024  ijoo 
*°^  "'Ttum  this  material  to  the  library 
from  which  It  was  borrowed. 


INDEX  TO  CHARTS 


b     000  457  5270 


Alphabetical 

24  Aqueduct  Power  Bureau 

6  Art  Commission 

26  Assessor 

27  Attorney 

35  Auditor 

10  Boiler  and  Elevator  Inspector 

29  Building  Department 

32  Buildings,  Custodian  of 

1  Censors,  Board  of 

17  Charities  Commission 

25  Civil  Service  Commission 

30  Clerk 

37  Council 

4  Courts,  Police 

13  Education,  Board  of 

18  Efficiency  Commission 

33  Electrician 

41  Engineer 

5  Fire  Commission 

42  Fire  Department 

2  Fire  Pension  Commission 
16  Gas  Inspector 

28  Harbor  Commission 

38  Harbor  Improvement,  Bureau  of 

43  Health  Department 

12  Humane  Animal  Commission 

44  Library 

8  Markets 

9  Mayor 

14  Mechanical  Engineers,  Board  of 

15  Music  Commission 

19  Oil  Inspector 

22  Opening  and  Widening  Bureau 

45  Park  Department 

34  Playground  Department 
5  Police  Commission 

46  Police  Department 

3  Police  Pension  Commission 
21  Police  Surgeon 

20  Prosecutor 

39  Purchasing  Department 

11  Sealer  of  Weights  and  Measures 
48  Service,  Department  of  Public 

7  Street  Assessment  Bureau 

47  Street  ^Maintenance  Bureau 

31  Tax  and  License  Collector 

23  Treasurer 

40  Utilities,  Board  of  Public 

36  Works,  Board  of  Public 


Numerical           ^B 

1 

Board  of  Censors 

2 

Fire  Pension  Commission 

3 

Police  Pension  Commission 

4 

Police  Courts 

5 

Police  Commission 

5 

Fire  Commission 

6 

Art  Commission 

7 

Street  Assessment  Bureau 

8 

Markets 

9 

Mayor 

10 

Boiler  and  Elevator  Inspector 

11 

Sealer  of  Weights  and  Measures 

12 

Humane  Animal  Commission 

13 

Board  of  Education 

14 

Board  of  Mechanical  Engineers 

15 

Music  Commission 

16 

Gas  Inspector 

17 

Charities  Commission 

18 

Efficiency  Commission 

19 

Oil  Inspector 

20 

Prosecutor 

21 

Police  Surgeon 

22 

Opening  and  Widening  Bureau 

23 

City  Treasurer 

24 

Aqueduct  Power  Bureau 

25 

Civil  Service  Commission 

26 

Assessor 

27 

Attorney 

28 

Harbor  Commisfsiou 

29 

Building  Department 

30 

City  Clerk 

31 

Tax  and  License  Collector 

32 

Public  Buildings 

33 

Electrician 

84 

Playground  Department 

35 

Auditor 

36 

Board  of  Public  Works 

37 

Council 

38 

Bureau  of  Harbor  Improvement 

39 

Purchasing  Department 

40 

Board  of  Public  Utilities 

41 

City  Engineer 

42 

Fire  Department 

43 

Health  Department 

44 

Library 

45 

Park  Department 

46 

Police  Department 

47 

Bureau  of  Street  Maintenance 

48 

Department  of  Public  Service 

LIBRARY 
PUBLIC  AFFAIR'^  '^fPVICE 

J  UN  2  5  1979 

UNIVtrt;>iiy  UI-CALIfURNIA 
LOS  ANGELES 


